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Administration of Grazing in 
National Forests 

AN ADDRESS 

DELIVERED BY 

A. F. POTTER, Associate Forester 

In Charge of Grazing 
BEFORE THE 

Sixteenth Annual Convention of the 
American National Live Stock Association 

At Phoenix, Arizona, January 15, 1913 

SHOWING: 

Volume of Live Stock Grazing in National Forests 

Beneficial Changes in Regulation Through Co-oper- 
ation with Stockmen 

Improvements in Grazing Conditions 

Increase in Value and Quality of Stock 

Greater Protection Given Small Stockmen 



By u--*iuix<tf 

MAY 1 



PUBLISHED BY 
AMERICAN NATIONAL LIVE STOCK ASSOCIATION 

909 Seventeenth Street, Denver, Colorado 
February, 1913 



OFFICERS 

OF THE 

Attwriratt National Htue Utok Asanriatum 

FOR THE YEAR 1913 



H. A. Jastro 



PRESIDENT 

Bakersrield, California 

FIRST VICE-PRESIDENT 
Dwight B. Heard .... Phoenix, Arizona 

SECOND VICE-PRESIDENTS 
J. B. Kendrick .... Sheridan, w/ yommg 



C. M. O'Donel . 
M. K. Parsons 
I. X. Pryor . 
C. B. Rhodes 



Bell Ranch, New Mex. 

Salt Lake City, Utah 

San Antonio, Texas 

Orchard, Colorado 



TREASURER 
John vv . Springer .... Denver, Colorado 



Sam H. C( 



ATTORNEY 

Fort >Arorth, Texas 



SECRETARY 
T. W. Tomlmson . . . Denver, Colorado 



^ i © 



EXECUTIVE COMMITTEE 



HUGH CAMPBELL Flagstaff, Ariz. 

F. T. COLTER Springerville, Ariz. 

E. H. CRABB Flagstaff, Ariz. 

L. L. HARMON Phoenix, Ariz. 

JAMES A. JOHNSON Williams, Ariz. 

CHARLES P. MULLEN Tempe, Ariz. 

W. H. NEEL McNeal, Ariz. 

M. A. PERKINS Junction, Ariz. 

FRED A. BIXBY Long Beach, Cal. 

H. S. BOICE Pasadena, Cal. 

O. B. FULLER Los Angeles, Cal. 

ROMIE JACKS Monterey, Cal. 

H. W. KLIPSTEIN, JR. . .Maricopa, Cal. 

A. T. LIGHTNER Bakersfield, Cal. 

H. S. STEPHENSON... Los Angeles, Cal. 
ISAAC BAER Meeker, Colo. 

D. D. CASEMENT. Colorado Springs, Colo. 

A. E. de RICQLES Denver, Colo. 

H. GLAZBROOK Higbee, Colo. 

LIAM GREEN Trinidad, Colo. 

JOHN MacBAIN Trinidad, Colo. 

M. J. GRAY St. Anthony, Idaho 

A. SYKES Des Moines, Iowa 

HORACE ADAMS Plains, Kan. 

M. C. CAMPBELL Wichita, Kan. 

T. M. POTTER Peabodv, Kan. 

W. J. TOD Maple Hill, Kan. 

ABRAM RENICK Winchester, Ky. 

E. C. HOUGHTON Corralitos, Mexico 

C. K. WARREN Three Oaks, Mich. 

W. D. JOHNSON Kansas City, Mo. 

R. J. KINZER Kansas City, Mo. 

L. F. WILSON Kansas City, Mo. 

J. M. BOARDMAN Helena, Mont. 

WALLIS HUIDEKOPER Wallis, Mont. 

KENNETH McLE AN. . .Miles City, Mont. 

D. W. RAYMOND Helena, Mont. 

P. J. SHANNON Hamilton, Mont. 

E. L. BURKE Omaha, Neb. 

W. G. COMSTOCK Ellsworth, Neb. 



A. H. METZGER Merriman, Neb. 

A. R. MODISETTE Rushville, Neb. 

ROBERT TAYLOR Abbott, Neb. 

HARRY PETRIE Golconda, Nev. 

H. W. ADAMS Vermejo Park, N. M. 

GEORGE W. BAKER Folsom, N. M. 

W. E. CURETON Steeplerock, N. M. 

W. H. JACK Silver City, N. M. 

W. C. McDONALD Carrizozo, N. M. 

C. W. MERCHANT Roswell, N. M. 

G. H. WEBSTER, .TR Cimarron, N. M. 

G. HOWARD DAVISON.. Millbrook, N. Y. 
W. E. HALSELL Vinita, Okla. 

D. E. CLARK Portland, Ore. 

O. M. PLUMMER N.Portland, Ore. 

E. STEWART Davville, Ore. 

BURTON C. MOSSMAN.Eagle Butte, S. D. 
P. H. O'NEIL Faulkton, S. D. 

F. M. STEWART Buffalo Gap, S. D. 

JULIAN M. BASSETT...Crosbyton, Tex. 

L. C. BRITE Marfa, Tex. 

S. B. BURNETT Fort Worth, Tex. 

JAMES CALL AN Menardville, Tex. 

JOHN LANDERGIN Vega, Tex. 

FID. C. LASATER... Falfurrias, Tex. 

J. H. NATIONS El Paso, Tex. 

J. H. PARRAMORE Abilene, Tex. 

AL POPHAM Amarillo, Tex. 

W. D. REYNOLDS Fort Worth, Tex. 

A. B. ROBERTSON Slaton, Tex. 

JAMES ANDRUS St. George, Utah 

J. M. CUNNINGHAM La Salle, Utah 

ROBERT D. CAREY Careyhurst, Wyo. 

W. C. IRVINE Cheyenne, Wyo. 

A. R. READER Dixon, Wyo. 

W. M. SPEAR Sheridan, Wyo. 

J. C. UNDERWOOD Underwood, Wyo. 

C. N. WALTERS Buffalo, Wyo. 

FRANK YODER Phillips, Wyo. 



OFFICE OF THE ASSOCIATION 

909 SEVENTEENTH STREET 
DENVER. COLO. 






TO THE CONGRESS OF THE UNITED STATES 



BY RESOLUTION OF THIS ASSOCIATION, IT WAS ORDERED THAT 
THIS ADDRESS OF MR. POTTER'S BE TRANSMITTED TO CONGRESS, 
"WITH THE STATEMENT THAT THE INFORMATION CONTAINED 
THEREIN, RELATIVE TO GRAZING IN THE NATIONAL FORESTS, IS 
IN COMPLETE ACCORD WITH OUR KNOWLEDGE, AND THAT THE 
GENERAL ADMINISTRATION OF THE GRAZING IN THE NATIONAL FOR- 
ESTS AND THE PLANS FOR IMPROVEMENT THEREOF MEET WITH OUR 
ENDORSEMENT." 

IT IS BECAUSE OF THE SUBSTANTIAL BENEFITS TO THE ENTIRE 
COUNTRY, AS WELL AS TO THE STOCKMEN, FLOWING FROM THE FED- 
ERAL ADMINISTRATION OF THE NATIONAL FORESTS— SUCH AS ELIMI- 
NATION OF RANGE DISPUTES, CONSERVATION OF GRASSES, INCREASED 
CARRYING CAPACITY OF THE RANGE, AND THE GENERAL SATISFAC- 
TION OF THE GREAT MAJORITY CONCERNED— THAT THIS ASSOCIA- 
TION STRONGLY URGES SIMILAR CONTROL OF THE SEMI-ARID, UNAP- 
PROPRIATED, PUBLIC GRAZING LANDS, BY LEASE OR OTHERWISE, UN- 
DER THE JURISDICTION OF THE DEPARTMENT OF AGRICULTURE OR 
THE DEPARTMENT OF THE INTERIOR, AS PROVIDED IN H. R. BILL NO. 
19857, NOW PENDING BEFORE THE COMMITTEE ON PUBLIC LANDS IN 
THE HOUSE OF REPRESENTATIVES. SUCH FEDERAL ADMINISTRATION 
OF THE SO-CALLED OPEN RANGE WOULD, WE CONFIDENTLY ASSERT, 
LARGELY INCREASE THE PRODUCTION OF LIVE STOCK IN THE WEST. 
WE INVITE ATTENTION TO THE FOLLOWING RESOLUTIONS, UNANI- 
MOUSLY ADOPTED BY THIS ASSOCIATION AT ITS ANNUAL MEETING 
AT PHOENIX, ARIZONA, JANUARY 15, 1913, WHERE EVERY IMPORTANT 
LIVE-STOCK ASSOCIATION OF THE WEST WAS REPRESENTED. WE 
ALSO INVITE CAREFUL CONSIDERATION TO THE EXTRACT FROM THE 
ANNUAL ADDRESS OF HENRY A. JASTRO, PRESIDENT OF THIS ASSOCI- 
ATION, ON THIS IMPORTANT SUBJECT. 

RESPECTFULLY SUBMITTED, 

EXECUTIVE COMMITTEE, AMERICAN NATIONAL LIVE STOCK 
ASSOCIATION. 

T. W. TOMLINSON, 

SECRETARY. 



RESOLUTIONS UNANIMOUSLY ADOPTED AT THE SIXTEENTH ANNUAL 
CONVENTION OF THE AMERICAN NATIONAL LIVE STOCK ASSOCIA- 
TION, AT PHOENIX, ARIZONA, JANUARY 14 AND 15, 1913. 



INDORSING THE ADMINISTRATION OF NATIONAL FORESTS. 

We believe that the administration of the national forests throughout the 
West is conducted along most efficient and just lines. Many matters of detail, 
which at first occasioned some discontent among stockmen, have been satisfac- 
torily adjusted, or are being remedied with consistent rapidity, and there is a 
very evident intention on the part of the officers of the service to manage the 
forests so as to obtain from them the greatest amount of reasonable use con- 
sistent with their preservation. The American National Live Stock Association. 
in convention assembled, at Phoenix, Arizona, January 14 and 15, 1913, therefore 
heartily indorses the administration of this service as being of distinct advan- 
tage to the stockmen of the West. 

We further believe that the live stock industry is best served through owner- 
ship and control of the national forests by the federal government, and we are 
opposed to any proposition which contemplates their transfer to the states. 



URGING FEDERAL CONTROL OF THE UNAPPROPRIATED AND UNRESERVED SEMI-ARID GRAZING 

LANDS. 

The American National Live Stock Association, in convention assembled, at 
Phoenix, Arizona, January 14 and 15, 1913, hereby declares that: 

We believe that the prosperity and development of the stock-raising industry 
on the public grazing lands of the arid and semi-arid West is seriously threatened 
by the present indiscriminate methods of grazing, and that thereby the perma- 
nent value of such lands is greatly impaired, and we strongly recommend the 
early passage by Congress of a bill providing for federal control of these unappro- 
priated public grazing lands and a just and reasonable method of leasing such 
lands. 

We favor a bill to operate either under the jurisdiction of the Department of 
the Interior or of Agriculture, and along the general lines definitely recommended 
by this organization at its annual convention in Denver in 1908, and approved at 
all its conventions since that date. This measure would be of great practical 
advantage to the stockmen and farmers of the West; would give full protection 
and encouragement to the actual settler and home-maker, and, through the distri- 
bution of the net revenues received in the construction of schools and good roads 
in the districts from which the funds are obtained, would be of great public 
benefit. We also vigorously urge Congress to provide without delay for the 
classification of the unappropriated unreserved public lands into grazing and 
agricultural districts. 



Co-operation in Range Management 



Mr. A. F. Potter: Mr. President, Ladies and Gentlemen — The 
administration of grazing in our national forests involves many differ- 
ent phases, and I am going to talk to you mainly this morning about 
''Co-operation in Range Management." 

The success which the Forest Service has had in regulating the 
use of the range, and in bringing about more satisfactory conditions 
in the national forests, has been due very largely to the hearty 
co-operation it has received from the stockmen. One of the first steps 
taken after the transfer of the national forests to the Department of 
Agriculture was to request the associations representing the owners 
of the different kinds of live stock to appoint a committee to meet 
with members of the Forest Service for the purpose of discussing 
proposed changes in the grazing regulations. 

The invitation was accepted, and a conference was held at Denver, 
Colorado, in December, 1905. This brought out many good sugges- 
tions from the stockmen, and led to the adoption of a definite policy 
which was to govern the regulation of grazing in the national forests. 
The most important points were: (1) that priority in the use of the 
range would be recognized, and the grazing privileges in the beginning 
allowed those who were already using the range; (2) that any changes 
which were found necessary, either in the number of stock grazed or 
in the methods of handling it, would be made gradually, after due 
notice had been given; (3) that small owners would be given a prefer- 
ence in the allotment of permits, and be exempted from reduction; 
(4) that the checking of damage to, and the improvement of, the 
forest would be brought about so far as possible without total 
exclusion of the stock; (5) that the forage resources of the national 
forests would be used to the fullest extent consistent with good forest 
management; and (6) that the stockmen would be given a voice in 
the making of rules for the management of their stock upon the range. 

Recommendations were made to the Secretary of Agriculture, 
which resulted in the promulgation by him, on March 31, 1906, of a 
regulation providing for the recognition of advisory boards repre- 
senting associations whose members were users of the forests, such 
boards to be entitled to receive notice, and have an opportunity to be 
heard in reference to increase or decrease in the number of stock to 
be allowed for any year, the division of range between different kinds 



6 

of stock, or the adoption of special rules to meet local conditions. 
Under this regulation, eighty-four advisory boards, representing the 
stockmen using the national forests, have been recognized, and are 
now co-operating with the Forest Service in an effort to bring about 
better conditions in the live-stock industry and the best possible use 
of the range. 

At this time it might be well to call attention to the extent of the 
forage resources in the national forests, in order that the importance 
of their use may be realized. Approximately 75 per cent of the 
national-forest land, or about 110,000,000 acres, is, or may be, used 
for the pasturage of live stock. The lands covered by the more open 
stands of timber, the exposed slopes of otherwise timbered hills or 
mountains, the narrow valleys along the streams, the areas above 
timber-line, and the cut-over or burned-over areas, all produce crops 
of forage, and are particularly desirable grazing grounds for cattle, 
horses, swine, sheep, and goats, during the seasons of the year when 
the various areas may safely be used. 

The money value of this forage crop is enormous. Each year the 
treasury of the United States is enriched to the extent of almost one 
million dollars, which is paid by stock-growers for the privilege of 
grazing their stock upon the national-forest lands. Each year the 
stock grazed under permit produces beef, mutton, wool, hides, and 
pelts to the value of more than thirty millions of dollars. Throughout 
the western states there are innumerable communities whose welfare 
and general prosperity are vitally dependent upon the systematic 
utilization of the forage products of the forest lands. The favorable 
effect which these low-priced and permanently productive ranges 
have upon the general question of meat supply and cost to the con- 
sumer is too pronounced to be doubted, and is of first importance to 
every consumer of meat products. 

During the grazing season of 1912 the national forests provided 
pasturage for approximately 14,000,000 head of stock. More than 
100,000 head of milch and work stock were grazed free of charge 
and without permit by settlers within and near the national forests. 
Permits for which a fee was paid were issued, allowing the grazing 
of 1,403,025 cattle, 95,345 horses, 4,330 swine, 7,467,890 sheep, and 
83,849 goats. The natural increase of this stock, for which no permit 
or fee was required, amounted to approximately 300,000 head of calves 
and colts, 5,000 swine, and 4,000,000 head of lambs and kids — nearly 
14,000,000 in all. In addition, forage was provided for 89,877 head 
of cattle and horses, and 5.174,052 head of sheep and goats, while this 



stock was being driven out national-forest lands to unreserved public 
lands or to lands in private ownership. The stock which to a greater 
or less extent is dependent upon the national forests, and is affected 
by their administration, reaches a grand total of almost 20,000,000 
head each year. 

The national forests have been established primarily for the 
protection and production of timber, and the protection of the drain- 
age basins constituting the principal sources of water supply. The 
utilization of the forage resources must necessarily be subordinated 
to the accomplishment of these principal and more vital purposes. 
Before the establishment of the national forests the lands included 
were parts of the unreserved public domain, and as such in many 
localities had been subjected for years to every form of overgrazing, 
misuse, and depletion attendant upon the unrestricted use of the 
public lands. One of the most complex problems connected with the 
administration of the national forests w r as that of devising a plan of 
management by which the forest cover and the watersheds could be 
adequately protected, and all of the lands be restored to a normal 
condition of forage productivity, without large permanent reductions 
in the number of stock grazed, or irreparable hardship upon the 
settlers and stock-growers who were dependent upon the forest 
ranges for the maintenance of their homes. 

With the assistance and co-operation of the stockmen, a system 
of range management has been built up under which a vegetative 
cover of valuable forage plants is rapidly extending over the denuded 
lands and displacing worthless weeds. The grazing capacity of the 
forests is increasing with each year. As shown by the Forester's 
annual report, there were increases of over 50,000 cattle, 3,800 horses, 
90,000 sheep, and 0,000 goats last year on an area which was decreased 
340,000 acres by eliminations. Damage to tree growth has diminished 
to a marked extent, and it is increasingly apparent that properly 
regulated grazing net only reduces the fire hazard by removing vast 
quantities of inflammable material, but, by the removal of competing 
vegetation and the exposure of the type of soil essential to the germi- 
nation of tree seeds, aids appreciably in the extension of the forest 
cover. This means that our efforts have been worth while, and shows 
what can be accomplished by earnest co-operative work. 

In bringing about this change, one of the first things which made 
themselves apparent was the need of fences to properly control the 
grazing of cattle and horses. One of the greatest drawbacks to the 
range-cattle business had been the loss from straying, and the large 



8 

amount of riding which must be done to prevent it. Fences were 
needed to keep the cattle upon their natural ranges and to enable 
the stockmen to handle them to advantage. Therefore, the Secretary 
of Agriculture issued regulations allowing the construction and main- 
tenance of drift and division fences upon the national forests. This 
gave the stockmen a lawful method of securing one of the privileges 
which were most needed for the success of their business. Where 
fences had already been built which did not give the stockmen owning 
them more than a fair share of the range, they were allowed to remain. 
Where new fences were needed the stockmen were permitted to 
construct them. Whenever these fences would materially assist in 
the administration of the forest, posts and poles were given free of 
charge, and in many cases also the wire and staples. In co-operation 
with the stockmen, the Forest Service has constructed over 650 miles 
of drift fences, and over 1.500 permits have been issued to stockmen 
for the maintenance of fences on the national forests. 

In addition to drift fences, the stockmen also needed small 
pastures for saddle horses, for use in gathering stock for shipment, 
and for pure-bred stock. Strictly speaking, the construction of these 
pastures cannot be classed as co-operative work, as the government 
has made no actual contribution to the cost of the fences. Still, by 
classifying and surveying the laud suitable for pasturage purposes, 
and by granting the exclusive use of such lands under permit, the 
government has made it possible for the stock-grower to protect him- 
self against many of the hazards of the industry, and to greatly lessen 
the costs of handling his stock. Almost 5,000 permits of this class 
have been issued, and the national-forest lands enclosed within 
pastures amount to over 500. 001) acres. 

Where the ranges were overstocked to an extent which was 
causing damage, one of three things had to be done: Either the 
growth of forage on the lands under use had to be increased, new 
areas opened to grazing, or the number of stock reduced. Areas not 
in use were mostly ranges which were inaccessible on account of the 
absence of the trails or bridges needed for stock to reach them, or 
because of the lack of a water supply. The Forest Service immedi- 
ately took up the problem of opening these ranges and, as funds were 
available, began the construction of the necessary improvements. In 
this work, as in all other ways, the stockmen have given hearty 
co-operation and assistance. All told, a total of over 13,000 miles of 
trails have been constructed in the national forests. In addition to 
making many areas of virgin range accessible to stock, this has facili- 



9 

tated the movemenl of stock in and ou1 of the forest, to and from 
shipping points, and from feed to water, and has greatly reduced the 
difficulty of securing supplies. 

Since 1908 the Forest Service lias developed over 800 sources of 
water supply, mainly by improving springs, building reservoirs, and 
opening trails to inaccessible waters. During the same period over 
750 sources of water supply were developed under permit by stock- 
men. Of these, about 570 were for reservoirs or tanks, and ISO for 
the development of springs and sinking of wells. While the Forest 
Service exceeded the stock-growers in number of projects, it is prob- 
able that the amount expended by it was less than That spent by the 
stockmen. Bridges were not strictly a range improvement, but they 
contribute greatly to the use of the range, and you will be interested 
to know that over 380 bridges have been built by the Forest Service. 

One of the stockman's greatest enemies is the predatory wild 
animal. Hundreds of thousands of dollars' worth of live stock are 
destroyed each year by wolves, coyotes, and mountain lions. It has 
been the desire of the Forest Service to assist in every possible way 
in the extermination of these pests. The forest rangers and guards 
have been supplied with traps and ammunition, and in localities where 
it was known that the depredations were serious, practical hunters 
have been employed as guards, and have spent their entire time in 
hunting predatory animals. The result has been that during the past 
four years forest officers have actually killed and found the bodies of 
over 1*7.500 wolves, coyotes, lions, bears, lynxes, and wild cats. These 

res do not include the animals shot or poisoned but not found, and 
therefore it is safe to say that over 30,000 predatory animals have been 
killed; and the reduction in stock losses effected by this means has 
gone far to compensate the stock-growers for the grazing fees they 
have paid. Requests have been made that the Forest Service extend 
its co-operation to the payment of bounties, but it has been unable to 
do so for the reason that there is no law which authorizes such action. 

Last August a bill was introduced in Congress by Senator Catron, 
of New Mexico, which provides an appropriation of |200,000 to enable 
the Secretary of Agriculture to co-operate with any state containing 
national forests which shall provide by law for the destruction of 
predatory wild animals, in the organization and maintenance of a 
plan for the destruction of such animals upon the national forests, 
under the condition that the state shall expend a proportionately equal 
amount. On the day following the introduction of this measure in 
the Senate, Mr. Mondell, of Wyoming, introduced a similar bill in the 



10 

House of Representatives. These bills are now before the committees 
of the two branches of Congress, and without question will be given 
very careful consideration. While this would not obligate the Secre- 
tary of Agriculture to pay bounties, it would provide a means by which 
he could do so if it was deemed advisable. It is a well-recognized 
fact that many of the bounty laws have been unsatisfactory and in- 
effective, and I think we all agree that an effort should be made to 
bring about a better and more uniform system. Favorable action 
upon this proposed law would enable the Secretary of Agriculture to 
co-operate in working out the right kind of a plan and in putting it 
into effect. 

Since taking charge of the national forests, the Forest Service has 
been endeavoring to perfect methods of handling stock upon the range 
which, while protecting the forests from injury, will appeal to the 
stockmen by their practicability. The essential requirements of an 
ideal administration are that the various ranges shall be used by the 
kinds of stock adapted to them during the periods when the removal 
of the forage crop will not lessen the productivity of the range; that 
trailing, trampling, and the congregating of stock be minimized, and 
that the stock be evenly distributed over the entire range; and that 
the ranges be used in rotation, so that vdthin every two or three 
years each portion shall have opportunity to reseed itself. With 
cattle and horses the problem has been largely one of permanent 
improvements, supplemented by new methods of distributing salt; 
with sheep it has necessitated the introduction of some innovations 
in herding, bedding, and trailing. The changes in method have not 
been arbitrarily imposed upon the stock-grower, but to a large extent 
have been developed by him out of the fruits of his own experience. 
In no instance has a change in method advocated by the Forest Service 
failed to justify itself by increased returns to the stock-grower. The 
drift fence, to hold cattle off the summer range in the spring and off 
the winter range in the fall; the newly developed waterhole, elim- 
inating the need for trailing several miles to water; the new salt 
ground, away from water and compelling use of previously wasted 
feed; the dividing fence between steers and stock cattle, all have 
repaid the stockmen by producing better beef, at a lower cost. With 
the sheepman the loose, open herding, without excessive use of dogs, 
and the bedding of the sheep where night overtakes them, rather than 
the return over barren trails to semi-permanent camps, have resulted 
in better ranges, better sheep, and larger profits. 



11 

It is an old saving- that "money talks," and I am going to take 
the liberty of reading a few extracts from our forest supervisor's 
report for the season of 1912, showing the results of regulated grazing. 

From the Humboldt Forest in Nevada it is reported that, when 
the Independence District was put under management, and for several 
years prior thereto, four or five bands of sheep, aggregating not more 
titan 10,000 head, and those not doing very well, was the extent of 
the grazing, and the cattle belonging to the settlers grazed on the 
low flats and in the fields. Now 20,500 sheep and 5,000 cattle find 
excellent grazing during the entire season. 

From the Beaver Head Forest in Montana it is reported that 
formerly the bands of sheep on this forest numbered 3,000 head up. 
Now they do not number over 1,600 ewes and lambs, or 2,100 dry 
sheep. This grazing in smaller bands has made a noticeable improve- 
ment both in the range and the condition of the lambs. 

From the Madison Forest in Montana the supervisor reports that 
the sheepmen are unanimous in their belief that "blanket herding" 
is increasing the feed on the ranges. Mr. T. F. Jenkins, of Twin 
Bridges, Montana, sold 200 spring lambs that averaged ninety-seven 
and one-half pounds. Twenty others averaged 112^ pounds. These 
lambs came from the forest ranges. One buyer paid five cents flat 
for all lambs coming from the forest ranges, and four and one-half 
and four cents for those from outside the forest. The buyer said the 
forest lambs averaged from six to nine pounds more than the others. 

From the Beartooth Forest in Montana it is reported that this 
year's lambs are from eight to twelve pounds better than outside 
lambs. 

The supervisor of the Tahoe Forest in California reports that 
excellent results were obtained from the burro system of herding; but, 
while the owners are well satisfied, the herders do not like it, and 
only follow the methods under the direct eye of the owners. 

On the Modoc Forest in California it is reported that out of fifty- 
nine permittees all but seven are using the burro system in handling 
their herds. There has been a great improvement in the carrying 
capacity of the ranges, and also in the weight of the lambs. In one 
instance the owner informs us that he believes he gained ten pounds' 
weight on each of his lambs. 

From the San Isobel Forest in Colorado it is reported that the 
Tompkins Cattle Company sold 500 three-year-old steers, half 
natives and half southern, which averaged 1,000 pounds, at $60 per 
head flat. Sixtv graded shorthorn, two-year-old steers from the Bio 



12 

Grande Forest in Colorado averaged 1,300 pounds, and brought their 
owner $71.50 per head net. The Wood Live Stock Company sold 400 
dry cows from the Targhee Forest in Idaho, which netted $48.70 per 
head. 

From the Jefferson Forest in Montana it is reported that Mr. D. N. 
Hart, of Two Dot, Montana, sold a bunch of steers which averaged 
1,400 pounds on the Chicago market, and brought $9.50 per hundred, 
or $133 per head. This caps the climax, and shows whether it pays 
to regulate the use of the range. 

In conclusion, I wish to say that it is our aim to continue a con- 
structive policy in the management of grazing upon the national 
forests, and to use every effort to bring about a better and more 
complete use of the forage resources. Many beneficial changes have 
been made through the assistance which you have given us during the 
past, and with a continuance of your co-operation I am sure that we 
shall be able to make further improvement and to better meet the 
needs of the live-stock industry. (Applause.) 



EXTRACT FROM ANNUAL ADDRESS OF H. A. JASTRO, PRESIDENT, 
AT THE SIXTEENTH ANNUAL CONVENTION OF THE AMERICAN 
NATIONAL LIVE STOCK ASSOCIATION, AT PHOENIX, ARIZONA, 
JANUARY 14 AND 15, 1913. 

The establishment of the national forests, and the grazing thereon under 
federal supervision, have met with general approval in this state as elsewhere, 
and I do not believe that the permanently established stockmen of Arizona, 
using these reserves, would be willing to return to the old system. Some similar 
administration of the open ranges of Arizona would, I am confident, meet with 
equal favor, and would add prosperity to the live-stock industry. Not only 
would it mean stability to the range business, but it would be an incentive to 
the users of the range to rest and reseed the ranges, which method would in 
time result in an increased production of live stock. This has been demon- 
strated beyond any contradiction by the very thorough experiments conducted 
at the Experiment Station in Tucson regarding the regeneration of the range 
grasses. Under a lease law, the country now used for nomadic grazing would 
be converted into a prosperous breeding country instead of a half-waste. I will 
not dwell longer on the merits and necessities of the lease law as applied to the 
semi-arid open range, for this is one of the leading questions for discussion at 
this meeting, and you will hear some very interesting talks regarding it. I 
wish, however, to comment on the economic side of the lease-law proposition. 

The United States has today less live stock per capita than ever in its 
history. Various reasons have been advanced for its shortage. Indeed, there 
are many causes which, in a greater or less degree, have contributed to bring 
it about. But of all the influences which have tended to lessen the production 
of live stock in the West, I believe the most potent is the very unsatisfactory 
range conditions arising out of indiscriminate grazing, and the scramble to 
secure what is left of the already depleted ranges. There is no business in the 
country so fraught with harassing and annoying difficulties as the handling of 
cattle under a free-range regime. Therefore, stockmen quickly embraced the 
opportunity to quit the business as soon as prices for stock warranted them in 
doing so. In my judgment, this is the chief cause why the free-range states 
of the West have so few cattle today. 

Congress is now trying, through the removal of the import duty, to cheapen 
the cost of live stock and meat in this country. This may give some temporary 
relief— and of that I am quite doubtful; but I am certain it will not cure the 
evil. The trouble is deeper-seated than the tariff, and is chargeable to the in- 
difference of Congress to the needs of the West, and to its failure to pass ade- 
quate laws protecting and conserving western ranges. 

This is not a new question. It has been agitated for many years. As 
early as 1900, at the annual convention of this Association in Fort Worth, 
Texas, a resolution was adopted urging Congress to classify and lease the semi- 
arid public grazing lands of the West. In 1903, at the annual meeting in 
Kansas City, this Association memoralized Congress to appoint a special Land 
Commission to investigate western land conditions. Pursuant to that memorial, 
the President of the United States appointed a Land Commission, which met in 
Denver, with 105 representative stockmen of the West, in a three days' con- 



14 

ference, in August, 1904, at which meeting I was present. That conference 
favored a classification of the public lands, and government control, by lease 
or otherwise, of the public grazing lands through the Department of Agriculture. 
Said commission rendered an exhaustive report along these lines, but no action 
was taken by Congress. 

In January, 1908, our Association formulated a specific bill for the leasing 
of the semi-arid, unappropriated, public grazing lands, fully protecting all the 
rights of the homesteader. That bill, with some slight modifications, has been 
introduced in both branches of Congress every session since 1908. None of thp 
bills were ever reported out of the committees to which they were referred. 
In fact, there have been various bills designed to solve this land question 
introduced at every session of- Congress for the past fifteen years. Last sum- 
mer lengthy hearings were held in May and July, before the Committee on 
Public Lands of the House of Representatives, on H. R. Bill No. 19857, known 
as the Lever Bill, and endorsed by this Association. Despite our efforts to 
have this bill reported favorably, it still lies dormant in that committee, as 
other bills have in previous sessions. In the past decade there have been land 
conventions which have considered and resoluted on this question; governors 
of the western states have conferred about it; and while many different rem- 
edies were proposed, no definite action has been taken, although there seems 
to be no division of sentiment on the point that some legislation must be had 
for the live-stock industry to derive the full benefit of the open range. 

The great difficulty in securing this much-needed legislation lies in the 
fact that the West is divided on the question. The majority of the stockmen 
of the West favor a law similar to that formulated by this Association, and 
those stockmen who oppose it are mostly nomadic stockmen who profit by pres- 
ent existing conditions. Then there is the opposition of those who think all the 
government land should be turned over to the state in which it is located. As 
the states have always followed the plan of leasing state lands, they would 
probably do the same with any open-range land turned over to them by the 
government, the only difference being that the state would lease the land instead 
of the federal government. Those who have had experience with both incline 
to the belief that the federal government would more equitably handle the 
land than the different states. However, the claim of those who want the land 
turned over to the states need not be seriously considered, because there is no 
likelihood of eastern legislators agreeing to such a disposition. Some others 
insist that a lease law would impede settlement of the West, and interfere 
with the rights of homesteaders. On the contrary, the history of the operation 
of lease laws all over the world proves that they promote the settlement 
and development of the country. That was true in Texas, and it will be true 
of other states. 

In view of this varied opposition on the part of some of the people of the 
West, it is not strange that western congressmen and senators should also 
entertain divergent views; for, as a rule, congressmen try to please their con- 
stituents and to offend none of them; so that explains their inactivity on this 
question. 

The land problem is strictly a western one, and representatives in Congress 
from all other sections claiming to have no direct interest in this matter have 
always preferred that any measures concerning range legislation should ema- 



Lo 

nate from our western representatives. And, for the reason 1 have mentioned — 
that our western senators and congressman will not unite on any plan that 
will suit the majority of them — Congress has been dilatory in acting upon this 
proposed legislation. However, since the eastern representatives to Congress 
have become more familiar with the situation, and this question has now be- 
come nation-wide, I believe that at this time we should urge all representa- 
tives in Congress and all senators to take up this matter in earnest, and enact 
some laws that will result in the greatest good to the greatest number. There 
will always be some opposition; that is true of every bill that passes Congress. 
Unanimity of opinion on this or any other subject is almost unattainable. 

It being evident that the shortage of live stock in the West is in a great 
degree traceable to the present range conditions, I hope our Congress will 
awaken to a just conception of a situation which we have sought for many 
years to make plain. The legislation we ask for concerns the East as much as 
the West; the consumer as well as the producer. It has been pigeonholed in 
committee-rooms long enough. I hope this convention will pass some strong 
resolutions on this important question, and that you will follow them up by 
again sending a strong representative committee to Washington to urge the 
passage of this much-needed legislation. 



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